Constitutional Conventions in the United Kingdom: Should they be

Constitutional Conventions in the United
Kingdom: Should they be codified?
Megan Caulfield
Abstract
This Article outlines whether constitutional conventions
should be codified in the event that the United Kingdom
were to adopt a codified constitution. Currently, the UK’s
constitution is un-codified. There has however, been much
debate as to whether the UK should adopt a codified
constitution. One of the overwhelming questions that faces
those who propose the adoption of a written constitution is
whether constitutional conventions should be codified and
thus, whether the nature and purpose of conventions would
allow for this radical change. Arguments for and against
codification of conventions are considered in the context of
four leading solutions: codify and legally enforce them,
codify them and leave them as non-legal guidelines (as is the
position in Australia), codify a selection or not codify them
at all. This complex debate has been considered by
Parliament, the courts and numerous academics; this article
seeks to outline this complex debate and the many
conflicting opinions. It is concluded in this article that to
leave conventions as uncodified would be the best course of
action for a newly codified constitution in the United
Kingdom.
I. Introduction
A.V.Dicey separates legal rules from conventions whereas,
Sir Ivor Jennings believes that the two can not be separated:
‘without conventions legislation and case law are quite
unintelligible.’1 If law can not be separated from conventions
as Jennings suggests, it would surely be difficult to create a
codified constitution without including conventions.
Marshall’s argument however, is closer to that of Dicey’s as
he implies that constitutional conventions are unlike legal or
1
Geoffrey Marshall, Constitutional Theory, (Clarendon Press, Oxford, 1980), 10.
2012]
CONSTITUTIONAL CONVENTIONS IN THE UK
43
moral rules because they are neither an outcome of
legislative or judicial decisions and they rarely govern matters
that are morally debatable. 2 It could be argued that it is
unnecessary to codify conventions that do not have a direct
moral impact upon the population. This debate regarding the
distinction between legal rules and conventions is
questionable because of their significance within the UK’s
legal system. Whichever theory is preferred it cannot be
ignored that ‘their constitutional importance in the United
Kingdom is immense’3. As a result of their importance, it is a
challenging task to decide whether or not conventions should
be codified. In considering this debate it is also to consider
the nature and impact of conventions themselves. This essay
seeks to examine whether constitutional conventions should
be codified if the United Kingdom were to adopt a codified
constitution. There is the choice to codify and legally enforce
them, codify them and leave them as non-legal guidelines,
codify a selection or finally, not codify them at all; each
potential outcome will be discussed in turn.
II. Should conventions be codified?
i. The easy way out? Not codifying conventions
The easiest approach would be not to codify conventions
at all. 4 The United Kingdom has never had a codified
constitution and the conventions within this uncodified
constitution have never been the clearest set of rules to
follow. In the United Kingdom’s uncodified constitution,
conventions do not have to be followed unconditionally5 and
it is possible for a Government to set aside a constitutional
convention if by following it, justice will not be provided. In
the Crossman diaries case6 in 1976 the Attorney General was
Geoffrey Marshall, Constitutional Conventions, (OUP, 1984), 216.
David Jenkins, ‘Common law declarations of unconstitutionality’, [2009] 7(2) IJCL,
<http://icon.oxfordjournals.org/content/7/2/183.full.pdf+html>
4
Rodney Brazier, Constitutional Reform: Reshaping the British Political System,
(Oxford University Press, 2008), 164.
5
Marshall (n 2), 216.
6
Attorney General v Jonathan Cape Ltd [1976] QB 752 .
2
3
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[Vol 1:42
unsuccessful in enforcing the convention of collective cabinet
responsibility. Lord Widgery noted that: “whatever the limits
of the convention…there is no obligation enforceable at law
to prevent the publication of Cabinet papers, except in
extreme cases where national security is involved.” 7 In this
case a constitutional convention was applied but ignored; as a
consequence we do not know how they will apply when put
to the test 8 or whether they can be morally justified. To
legally enforce or codify conventions that are impractical
would be to inflict problems upon the Government and
courts who would have no choice but to apply them.
Without codification, conventions can be ‘applied to fresh
political circumstances’ 9 , not ignored, but applied where
necessary. Again, this argument is in support of not codifying
constitutional conventions. Jenkins comments that ‘…without
conventions, the Constitution loses its modern, democratic
mechanisms and becomes no more than the bare frame of
an old, still autocratically minded relic of the Glorious
Revolution.’ 10 He implies that constitutional conventions
bring flexibility to what would be a rigid legal framework but
also that the constitution can be kept up to date with the
changing needs of Government.11In 2006, both the House of
Lords and the House of Commons began to consider
codifying certain conventions that affected the House of
Lords and legislation. 12 The ideas were rejected on the
grounds that to codify conventions would be a contradiction,
considering that their purpose is to provide flexibility and
have the capacity to evolve.13 To codify conventions would be
to reduce their adaptability as circumstances change and
Attorney General (n 6) (Lord Widgery)
Institute for Public Policy Research, A written constitution for the United
Kingdom, (Mansell, London, 1993), 214.
9
Marshall, Conventions, (n 2), 217.
7
8
10
Jenkins (n 3)
Peter Leyland, The Constitution of the United Kingdom, (Hart Publishing, 2007)
25.
12
A.W.Bradley, K.D.Ewing, Constitutional and Administrative Law, (Longman,
2010, 15th edition), 28.
13
Joint Committee on Conventions, Conventions of the UK Parliament, HL Paper
265-1, HC 1212-1.
11
2012]
CONSTITUTIONAL CONVENTIONS IN THE UK
45
society progresses; they should not be legally enforced and
they should not be codified to preserve this advantage that
our constitution has. 14
ii. The desire for certainty: codifying conventions
It could be argued that codifying conventions would bring
certainty and make constitutional law more easily accessible.
The Ministerial Code is an example of a set of codified
conventions published by the Government that apply to
Ministers in Parliament. It could be useful to bring together
rules on a defined subject so that they are readily available
for the public; this is one option open to Parliament. 15 In
response however, it could be argued that although it may
provide easier access, the majority of conventions, like those
in the Ministerial Code do not directly affect citizens of the
state. They ‘do not affect individuals closely enough’ 16 to
justify the need of a single, accessible document being
produced, especially when considering the difficulties that
would accompany its drafting.
iii. The Australian example: Codifying a selection of
conventions
If we decide not to codify the entirety of constitutional
conventions, another option would be to codify a small
selection: certain conventions that affect the public could be
codified and those otherwise should not. A similar approach
has been adopted in Australia, which has a statement of the
main constitutional conventions that affect the federal
Government. 17 This could be a course of action that the
United Kingdom could take; to codify certain conventions
but not legally enforce them.
The nature of conventions themselves obstruct this
seemingly reasonable idea. Not only are they flexible but
14
Brazier (n 4), 164.
Bradley (n 12), 29.
16
Bradley (n 12), 29.
17
Brazier (n 4), 165.
15
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their ‘content and scope is at times unclear.’ 18 Identifying
conventions presents a difficult task and their uncertainty has
caused a significant amount of debate in Parliament. In 1955,
Sir Antony Eden wanted to appoint Lord Sailsbury as
Foreign Secretary but was deterred from doing so according
to the convention that the Foreign Secretary must be
appointed from the House of Commons. Despite this, Lord
Home was appointed as Foreign Secretary in 1960 by Harold
Macmillan and Lord Carrington by Margaret Thatcher in
1979. That which was perceived to be a convention initially,
eventually turned out to be a generalisation. 19 This clearly
illustrates the uncertainty surrounding conventions and why it
would be inconceivable to codify only a selection.
vi. Codifying and legally enforcing conventions
In considering the uncertainty of conventions it would not be
plausible to either codify or legally enforce a set of
regulations that are so vague and unclear. Conventions, by
their very nature, are ambiguous but also flexible and thus,
should not be codified or legally enforced in order to
maintain this vital characteristic of the United Kingdom’s
constitution.
Despite their ambiguity conventions are observed because
of the problems that arise if they are not.20 Dicey argues that it
is legal difficulties that arise whereas Jennings notes that
‘conventions are observed because of the political difficulties
which arise if they are not.’ 21 In 1909 the House of Lords
refused to pass a money Bill, which was a clear breach of
convention and caused both legal and political outrage. As a
result, in 1911 a statute22 was introduced to enforce in law that
which had previously been a convention. If certain
conventions are found to have serious consequences when
18
Vernon Bogdanor, Stefan Vogenauer, ‘Enacting a British Constitution: some
problems’ [2008] PL Spr 38-57.
19
Bogdanor (n 18.)
20
Leyland (n 11), 27.
21
W.I.Jennings, The Law and the Constitution, (University of London Press, 1938,
2nd edition), 128-9.
22
Parliament Act 1911, s1(1).
2012]
CONSTITUTIONAL CONVENTIONS IN THE UK
47
breached, it would be reasonable to enforce a selection as law
and codify them. Conventions are rarely ignored and thus, to
begin a process of codifying and enforcing them could be
seen to be unnecessary when considering the extremely
challenging task in hand.
III. Conclusion
As has been illustrated in this article, deciding whether to
codify constitutional conventions poses a complex question.
To codify and enforce all conventions by law would arguably
introduce certainty but completely restrict the flexibility that
the United Kingdom’s constitution holds. Instead a
proportion of the most significant rules could be enforced
and codified. This raises the issue of how to classify
conventions and why those that are not classified as
important are valuable as conventions at all. It has also been
suggested that a ‘non-legal statement’ 23 could be made of
conventions, as in Australia. However, the fact that they are
not all agreed upon or followed raises concerns.
Considering the arguments and nature of conventions, it is
clear that the easiest approach to take is to leave them as they
are 24 and embrace the flexibility that they bring to our
constitution. It is noted that conventions play a more
significant role in countries with written constitutions because
‘…the greater the degree of constitutional rigidity, the greater
is the need for the benefits of informal adaptation which
conventions bring.’ 25 Thus, if the United Kingdom were to
adopt a written constitution the informal, flexible and nonlegal rules would continue to work as a fundamental part of
the UK constitution, as they have for hundreds of years. To
leave conventions as un-codified would be the best course of
action for a newly codified constitution in the United
Kingdom.
23
24
25
Brazier (n 4), 164.
Brazier (n 4), 164.
C.R. Munro, ‘Laws and Conventions Distinguished’ [1975] 91 LQR, 218-219.
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BIBLIOGRAPHY
Books
Bradley A.W, Ewing, K.D. Constitutional and Administrative
Law, (Longman, 2010, 15th edition.
Brazier, R. Constitutional Reform: Reshaping the British
Political System, (OUP, 2008).
Institute for Public Policy Research, A written constitution
for the United Kingdom, (Mansell, London, 1993).
Jennings, W.I. The Law and the Constitution, (University of
London Press, 1938, 2nd edition.
Leyland, P. The Constitution of the United Kingdom, (Hart
Publishing, 2007).
Marshall, G. Constitutional Theory, (Clarendon Press,
Oxford, 1980).
Cases
Attorney General v Jonathan Cape Ltd [1976] QB 752 (QB).
Statutes
Parliament Act 1911, s1(1).
Parliamentary reports
Joint Committee on Conventions, ‘Conventions of the UK
Parliament’, HL 265-1, HC 1212-1.
Articles
Bogdanor, V. Vogenauer, S. ‘Enacting a British Constitution:
some problems’ [2008] PL Spr 38-57.
Munro, C.R. ‘Laws and Conventions Distinguished’ [1975]
91 LQR 218-219.
Electronic Journals
Jenkins, D. ‘Common law declarations of
unconstitutionality’, [2009] 7(2) IJCL,
http://icon.oxfordjournals.org/content/7/2/183.full.pdf